EN

Internal security
strategy for the
European Union
Towards a European security model

MARCH 2010
Notice

This text, adopted by the Justice and Home Affairs Council at its meeting on 25 and 26 February 2010,
was approved by the European Council on 25 and 26 March 2010.

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Luxembourg: Publications Office of the European Union, 2010

ISBN 978-92-824-2679-1
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© European Union, 2010

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Internal security
strategy for the
European Union
Towards a European security model
 3
ABC

In December 2003, the European Union adopted the European secur-

ity strategy, which looked at the external aspect of Europe’s security.

In February 2010, under the six-month Spanish Presidency, the Council

complemented the European security strategy by adopting the internal
security strategy.

The internal security strategy was approved by the European Council

on 25 and 26 March 2010.
 5
Contents

INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

1. PROTECTING PEOPLE IN EUROPE WITHIN

A GLOBAL SOCIETY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

COMMON THREATS: THE MAIN CHALLENGES

FOR THE INTERNAL SECURITY OF THE EU . . . . . . . . . . . . . . 13

THE RESPONSE TO THESE CHALLENGES . . . . . . . . . . . . . . . . . 15

2. TOWARDS A EUROPEAN SECURITY MODEL. . . . . . . . . . . . . . 19

PRINCIPLES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

STRATEGIC GUIDELINES FOR ACTION . . . . . . . . . . . . . . . . . . . 21

3. NEXT STEPS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
 7
INTRODUCTION

For 50 years the European Union (EU), its institutions and Member
States have promoted and provided freedom and security. Europe
guarantees respect for human rights, the rule of law and solidarity.
As Europeans, we enjoy the right to live, work and study in European
countries other than our own. The removal of internal border controls
in the Schengen area was an especially great step forward for Europe.
In addition, technological advances have revolutionised the modes and
speed of communications, with the result that not only our borders, but
also our societies, have opened up. Through unity in diversity, this free
and prosperous Europe continues to facilitate and enrich people’s lives.

For citizens of the European Union, security is one of the main prior-
ities. The EU multiannual work programmes have already provided
a good pragmatic basis for strengthening operational cooperation,
but now a larger consensus on the vision, values and objectives which
underpin EU internal security is required.

The main crime-related risks and threats facing Europe today, such as
terrorism, serious and organised crime, drug trafficking, cybercrime,
trafficking in human beings, sexual exploitation of minors and child
pornography, economic crime and corruption, trafficking in arms
and cross-border crime, adapt extremely quickly to changes in science
and technology in their attempt to exploit illegally and undermine the
values and prosperity of our open societies.

Whilst in itself not aimed at creating any new competences, but

at integrating existing strategies and conceptual approaches, and
acknowledging the framework of the Stockholm programme, the EU
internal security strategy is responsive to this. It demonstrates a firm
commitment to continuing to make progress in the area of justice,
freedom and security through a European security model which faces
the following challenges: protecting rights and freedoms; improving
8

cooperation and solidarity between Member States; addressing the causes

of insecurity and not just the effects; prioritising prevention and anticipa-
tion; involving all sectors with a role to play in public protection (political,
economic, social, etc.); communicating security policies to the citizens;
and, finally, recognising the interdependence between internal and external
security in establishing a ‘global security’ approach with third countries.

It is thus vital that the internal security strategy itself be able to adapt,
both to the needs of citizens, and to the challenges of the dynamic and
global 21st century.

The concept of internal security must be understood as a wide and com-

prehensive concept which straddles multiple sectors in order to address
these major threats and others which have a direct impact on the lives,
safety and well-being of citizens, including natural and man-made disasters
such as forest fires, earthquakes, floods and storms.

The cooperation of law-enforcement and border authorities, judicial

authorities and other services in, for example, the health, social and civil
protection sectors is essential. Europe’s internal security strategy must
exploit the potential synergies that exist in the areas of law-enforcement
cooperation, integrated border management and criminal justice systems.
Indeed, these fields of activity in the European area of justice, freedom
and security are inseparable: the internal security strategy must ensure
that they complement and reinforce one another.

Europe must consolidate a security model, based on the principles and

values of the Union: respect for human rights and fundamental freedoms,
the rule of law, democracy, dialogue, tolerance, transparency and solidarity.
 9

The quality of our democracy and public confidence in the Union will
depend to a large extent on our ability to guarantee security and stability
in Europe and to work with our neighbours and partners to address the
root causes of the internal security problems faced by the EU.

The internal security strategy has been adopted in order to help drive
Europe forward, bringing together existing activities and setting out the
principles and guidelines for future action. It is designed to prevent crimes
and increase the capacity to provide a timely and appropriate response to
natural and man-made disasters through the effective development and
management of adequate instruments.

© European Union, 2010

 11
1. PROTECTING PEOPLE IN EUROPE
WITHIN A GLOBAL SOCIETY

The European Union in the 21st century consists of 500 million people
across the 27 countries which make up the Union. Economic growth,
together with the opportunities provided by a free and democratic society
based on the rule of law, generates prosperity amongst Europe’s citizens —
but with such opportunities also come risks, as terrorists and other types
of criminals seek to abuse those freedoms in the pursuit of destructive
and malicious ends. Furthermore, the increased mobility of people in turn
increases our common responsibility for protecting the freedoms which
all citizens of the Union cherish.

Schengen area enlarge-

ment celebrations held
in Zittau, a German town
at the border tripoint of
Germany, Poland and
the Czech Republic, in
December 2007

© European Union, 2010

Security has therefore become a key factor in ensuring a high quality of

life in European society, and in protecting our critical infrastructure by
preventing and tackling common threats.

There is no such thing as ‘zero risk’ but, despite that, the Union must create
a safe environment in which people in Europe feel protected. Furthermore,
the necessary mechanisms must be put in place to maintain high security
levels, not only within EU territory, but also as far as possible when citizens
12

travel to third countries or find themselves in virtual environments such

as the Internet.

In this context EU internal security means protecting people and the values
of freedom and democracy, so that everyone can enjoy their daily lives
without fear. It also reflects Europe’s shared vision of today’s challenges
and our resolve to present a common front in dealing with those threats,
where appropriate, with policies that harness the added value of the EU.
The Lisbon Treaty and the Stockholm programme enable the EU to take
ambitious and concerted steps in developing Europe as an area of justice,
freedom and security. Against that background, this strategy:

— sets out the common threats and challenges we face which make it
more and more important for EU Member States and institutions to
work together in order to tackle new challenges which go beyond our
national, bilateral or regional
capability;
• Together we are more effect-
ive and better prepared for
— sets out the EU’s common
the threats we face.
internal security policy — and
• An internal security strategy
the principles underpinning
which reflects the values and
it — in a comprehensive and
priorities we all share.
transparent way;
• Actions which reflect both
public security and the
— defines a European security
rights of the individual.
model, consisting of common
tools and a commitment to: a
mutually reinforced relationship between security, freedom and privacy;
cooperation and solidarity between Member States; involvement of all
the EU’s institutions; addressing the causes of insecurity, not just the
effects; enhancing prevention and anticipation; involvement, as far as
they are concerned, of all sectors which have a role to play in protec-
tion — political, economic and social; and a greater interdependence
between internal and external security.
 13

COMMON THREATS: THE MAIN CHALLENGES FOR THE

INTERNAL SECURITY OF THE EU

Crime takes advantage of the opportunities offered by a globalised society

such as high-speed communications, high mobility and instant financial
transactions. Likewise, there are phenomena which have a cross-border
impact on security and safety within the EU. There are, therefore, a number
of significant common threats which can be identified.

— Terrorism, in any form, has an absolute disregard for human life and
democratic values. Its global reach, its devastating consequences, its
ability to recruit through radicalisation and dissemination of propa-
ganda over the Internet and the different means by which it is financed
make terrorism a significant and ever-evolving threat to our security.

• In 2007, through Eurojust, 26 people

across Italy, France, Romania, Portugal
and the UK were arrested in an
international anti-terrorist operation.
The organisation was planning to carry
out attacks in Italy, Afghanistan,
Iraq and Arab countries.
Source: Eurojust Annual Report 2007,
pp. 34–35.

• In 2008, through national, regional

and EU efforts, 1 009 people across
13 countries were arrested on terrorism
charges.
Source: Europol TE-SAT Report 2009,
p. 6.
14

In February 2008, during

Operation PIPAS (against an
organisation carrying out credit — Serious and organised crime is
card fraud), 100 people were of increasing importance. In its
arrested and 48 house searches various forms it tends to occur
conducted through a joint wherever it can reap the most
investigation between financial benefit with the least
11 countries, coordinated risk, regardless of borders. Drug
by Europol. trafficking, economic crime,
Source: Europol Annual human trafficking, smuggling
Report 2008, p. 24. of persons, arms trafficking,
sexual exploitation of minors
and child pornography, violent
crimes, money laundering and document fraud are only some of the
ways in which organised and serious crime manifests itself in the EU.
In addition, corruption is a threat to the bases of the democratic system
and the rule of law.

— Cybercrime represents a global, technical, cross-border, anonymous

threat to our information systems and, because of that, it poses many
additional challenges for law-enforcement agencies.

— Cross-border crime, such as petty or property crime, often carried out

by gangs, when it has a significant impact on the daily lives of people
in Europe, poses a common threat.

— Violence itself, such as youth violence or hooligan violence at sports

events, increases the damage already caused by crimes and can signifi-
cantly harm our society.

— Natural and man-made disasters, such as forest fires, earthquakes,

floods and storms, droughts, energy shortages and major information
and communication technology (ICT) breakdowns, pose safety and
security challenges. In this day and age, civil protection systems repre-
sent an essential element of any modern and advanced security system.

Flooding caused by
the River Elbe

© Fotolia
 15

Joint police and customs centres have been

set up, such as the Centre de Coopération
— There are a number of other Policière et Douanière in Luxembourg, which
common phenomena which supports effective operational cooperation
cause concern and pose safety between the police, gendarmerie and
and security threats to people customs authorities of Belgium, Germany,
across Europe, for example road Luxembourg and France.
traffic accidents, which take
the lives of tens of thousands The Salzburg Forum is composed of the
of European citizens every year. Interior Ministers of Bulgaria, the Czech
Republic, Hungary, Austria, Poland,
THE RESPONSE Romania, Slovenia and Slovakia, who meet
to discuss common security issues.
TO THESE CHALLENGES
The Baltic Sea Task Force, including non-EU
In order to cope with these phe-
members, was set up to combat organised
nomena, EU Member States have
crime in the Baltic Sea region.
their own national security poli-
cies and strategies, and in response
to the movement of criminals
between neighbouring countries, bilateral, multilateral and regional patterns
of cooperation among Member States have also been developed.

However, since those efforts are not enough to prevent and fight such criminal
groups and their activities, which go far beyond our borders, an EU-wide
approach is increasingly required.

The Member States must continuously strive to

develop instruments so that national borders,
differing legislation, different languages and
ways of working do not impede progress in
preventing cross-border crime.

In July 2009, a criminal organisation of 17 people,

responsible for the counterfeiting of euro with a face
value of more than EUR 16 million distributed through-
out the EU, was dismantled by the Bulgarian and
Spanish prosecution and police authorities, with the
help of a joint investigation team that included Eurojust Europol combats forgery of
and Europol. banknotes © Europol

Source: Eurojust press release of 3 July 2009.

16

The abolition of
internal border
controls has
made it easier to
travel within the
Schengen area

© Fotolia

The EU has made significant progress in this area in recent years. For
example, increased law-enforcement and judicial cooperation has been
essential since the abolition of internal border controls, which allows for
the free movement of people within the Schengen area.

Numerous instruments for facilitating cooperation have been developed.

The most relevant are listed below.

— Analysis of future situations and scenarios: threat anticipation.

Europol and other EU agencies produce regular threat assessments.

— Adequate response: planning, programming and handling the

consequences. Work programmes have been developed which enable
us to address the dangers to and the concerns of citizens in a methodi-
cal way. Strategies and specific work plans have also been developed
on counterterrorism, drug trafficking, trafficking in human beings,
organised crime and civil protection. Furthermore, the Community
Civil Protection Mechanism coordinates the response of Member States
to natural and man-made disasters.
 17

— Effectiveness in the field: the work of agencies, institutions and bodies. A

number of agencies specific to the EU have been created and these include:
Europol, whose main aims are to collect and exchange information and
to facilitate coop-
eration between
law-enforcement
authorities in The
their fight against headquarters
organised crime of Eurojust
and terrorism; and the
Eurojust, which International
d r ives coor- Criminal Court
dination and in The Hague
increases the
© European
effectiveness of
Union, 2010
judicial authori-
ties; and Frontex,
wh ich ma n-
ages operational
cooperation at the external borders. The EU has also created the role of
the Counterterrorism Coordinator. Other bodies and networks have
also been established in the fields of
training, drugs, crime prevention,
corruption and judicial cooperation
in criminal matters.

Gilles de Kerchove,
EU Counterterrorism Coordinator

Council of the EU
© European Union
18

— Tools based on mutual recognition, for information sharing and to

facilitate joint investigations and operations. Instruments based on
mutual recognition include the European Arrest Warrant and provision
for the freezing of assets. Databases such as the Schengen informa-
tion system and networks have also been established for the exchange
of information on criminal records, on combating hooliganism, on
missing persons or stolen vehicles and on visas which have been issued
or refused. The use of DNA and fingerprint data helps put a name to
anonymous traces left at crime scenes. EU legal instruments facilitate
operational cooperation between Member States, such as the setting up
of joint investigation teams, the organising of joint operations and close
cooperation to ensure the security of international events, including
major sporting competitions.

— Evaluation mechanisms have been developed to assess the effective-

ness of our actions. For example, peer-to-peer evaluation exercises
in the field of terrorism and organised crime have contributed to the
improvement of mutual trust.
 19
2. TOWARDS A EUROPEAN
SECURITY MODEL

The success to date demonstrates great progress in the fields of justice,

freedom and security in the EU. However, we must continue to pool our
efforts in order to guarantee even greater protection for our citizens. The
Stockholm programme and strategies such as the European security strat-
egy, the strategy on the external dimension in the area of justice, freedom
and security, and the information management strategy have provided a
good basis for doing that.

The time has come to harness and develop common tools and policies to
tackle common threats and risks using a more integrated approach: that
is the main aim of the internal security strategy. To achieve that aim we
have chosen a security model which integrates action on law enforcement
and judicial cooperation, border management and civil protection.

The principles and guidelines for action using this model are set out below.

PRINCIPLES

People in Europe expect to live in security and to enjoy their freedoms:

security is in itself a basic right. The values and principles established in
the Treaties of the Union and set out in the Charter of Fundamental Rights
have inspired the EU’s internal security strategy:

— justice, freedom and security policies which are mutually reinforcing

whilst respecting fundamental rights, international protection, the
rule of law and privacy;

— protection of all citizens, especially the most vulnerable, with the

focus on victims of crimes such as trafficking in human beings or
gender violence, including victims of terrorism who also need special
attention, support and social recognition;

— transparency and accountability in security policies, so that they can

be easily understood by citizens, and take account of their concerns
and opinions;
20

— dialogue as the means of resolving differences in accordance with the

principles of tolerance, respect and freedom of expression;

— integration, social inclusion and the fight against discrimination as

key elements for EU internal security;

Freedom of
expression is one of
the European values
underpinning
the internal security
strategy

© Fotolia

— solidarity between Member States in the face of challenges which can-

not be met by Member States acting alone or where concerted action is
to the benefit of the EU as a whole;

— mutual trust as a key principle for successful cooperation.

 21

STRATEGIC GUIDELINES FOR ACTION

On the basis of these principles, 10 guidelines for action are laid down
in order to guarantee the EU’s internal security over the coming years.

I — A wide and comprehensive approach to internal security

Internal security must be seen as encompassing a wide range of measures

with both horizontal and vertical dimensions:

— horizontal dimension: to reach an adequate level of internal secu-

rity in a complex global environment requires the involvement of
law-enforcement and border-management authorities, with the sup-
port of judicial cooperation, civil protection agencies and also of the
political, economic, financial, social and private sectors, including
non-governmental organisations;

— likewise, we must take into account the vertical dimension of security at

various levels: international cooperation, EU-level security policies and
initiatives, regional cooperation between Member States and Member
States’ own national, regional and local policies.

II — Ensuring the effective democratic and judicial supervision

of security activities

Following the entry into force of the Lisbon Treaty, the involvement of the
European Parliament in the development of security policies has greatly
increased, which means that effective consultation at all stages is essential.
National parliaments also have a greater role to play in the work of the EU
through their ability to monitor application of the subsidiarity principle
and through their participation in evaluation of the implementation of
justice, freedom and security policies.
 22

The Court of Justice of the European Union becomes fully competent in

this area (except as regards Member States’ internal law and order and
their security responsibilities). Finally, the EU’s accession to the European
Convention on Human Rights will also contribute to improved protection
for the human rights of people in Europe.

III — Prevention and anticipation: a proactive,

intelligence-led approach

Among the main objectives of the internal security

We should ensure that
Member States share
intelligence in time
to prevent crime and
bring offenders to
justice.
strategy for the EU are the prevention and anticipation of
crime as well as of natural and man-made disasters, and
the mitigation of their potential impact. Whilst effec-
tive prosecution of the perpetrators of a crime remains
essential, a stronger focus on the prevention of criminal
acts and terrorist attacks before they take place can help
reduce the consequent human or psychological damage,
which is often irreparable.

Our strategy must therefore emphasise prevention and anticipation, which

is based on a proactive and intelligence-led approach as well as procuring
the evidence required for prosecution. It is only possible to bring successful
legal action if all necessary information is available.

Furthermore, it is necessary to develop and improve prevention mech-

anisms such as analytical tools or early-warning systems. An appli-
cable instrument of prevention should also be a European passenger
names record (PNR) that
ensures a high level of data
EU Member protection, for the purpose
States are
of preventing, detecting,
cooperating with
one another
investigating and pros-
and with third ecuting terrorist offences
countries to and serious crime, based
improve the on an impact assessment.
security of air This allows us to deepen
travel our understanding of the
different types of threats
© Fotolia
 23

and their probability and to anticipate what might happen, so that we

are not only prepared for the outcomes of future threats but also able to
establish mechanisms to detect them and prevent their happening in the
first place. For this reason, a comprehensive approach must be taken that
is geared to constant detection and prevention of the threats and risks
facing the EU in the various areas of internal security, and the main issues
of concern to the public. A strategy to prevent and tackle threats such as
organised crime is needed.

Prevention of crime means addressing the root causes and not just the
criminal acts and their consequences.

Security policies, especially those of prevention, must take a broad approach,

involving not only law-enforcement agencies but also institutions and pro-
fessionals at both national and local levels. Cooperation should therefore be
sought with other sectors like schools, universities and other educational
institutions, in order to prevent young people from turning to crime. The
private sector, especially when it is involved in financial activities, can
contribute to the development and effective implementation of mechan-
isms to prevent fraudulent activities or money laundering. Civil society
organisations can also play a role in running public awareness campaigns.

EU action in the field of civil protection must be guided by the objec-

tives of reducing vulnerability to disasters through development of a
strategic approach to disaster prevention and anticipation and by further
improvements in preparedness and response while recognising national
responsibility. Guidelines for hazard and risk-mapping methods, assess-
ments and analyses should be developed as well as an overview of the
natural and man-made risks that the EU may face in the future. This EU-wide
risk analysis should be the
basis for cooperation initia-
tives between risk-sharing
Member States and the EU Forest fires
in the field of civil protec- highlight the
tion and capacity planning. need for efficient
New risks and threats civil protection
are to be identified, such systems
as energy shortage, ICT
© Fotolia
24

breakdowns and pandemics. The resilience of citizens as well as the

public and private sectors to the effects of disasters are to be included in
prevention policies.

IV — Development of a comprehensive model for

information exchange

An internal security policy supported by information exchange on a basis

of mutual trust and culminating in the principle of information availability
is needed. If law-enforcement authorities are to be able to prevent and act
early they must have timely access to as much data as possible concerning
criminal acts and their perpetrators, modus operandi, details of victim(s),
vehicles used, etc.

In order to increase substantially the current levels of information exchange,

we must continue to strengthen the mechanisms which build mutual trust
between the authorities responsible for ensuring internal security in the
EU, in order to enhance existing mechanisms and use the information
management strategy to develop a secure and structured European infor-
mation exchange model.

This model will include all the different EU databases relevant for ensuring
security in the EU so that there can be interaction between them, as far as it
is needed and permitted, for the purpose of providing effective information
exchange across the whole of the EU and maximising the opportunities
presented by biometric and other technologies for improving our citizens’
security within a clear framework that also protects their privacy.

This information exchange model must always fully respect the right to
privacy and protection of personal data. If a higher level of security means
an increase in data exchange, it is important that that increase be managed
carefully, that it be proportionate and that it respect data protection laws.
 25

V — Operational cooperation

The Lisbon Treaty has created the Standing Committee on Operational

Cooperation on Internal Security (COSI) to ensure effective coordina-
tion and cooperation between law-enforcement and border-management
authorities, including the control and protection of external borders, and
when appropriate judicial cooperation in criminal matters relevant to
operational cooperation. The work of this committee will be based, above
all, on national and EU threat assessments and priorities.

Stringent cooperation between EU agencies and bodies involved in EU

internal security (Europol, Frontex, Eurojust, CEPOL and Sitcen) must
be also ensured by COSI so as to encourage increasingly coordinated,
integrated and effective operations. Such players must continue to improve
the provision of effective support to specialist services in Member States.
In particular, Europol’s capacity to support Member States’ operations
should be improved.

Meeting of the Justice

and Home Affairs
Council

Council of the EU
© European Union
 26

During the 2006 football

World Cup in Germany,
police officers
Progress should be made on the devel-
from 13 European
opment of a cooperation framework to
countries were on duty
improve security and safety at major and
in Germany, wearing
mass international events.
their regular uniforms
and having been
granted law-
enforcement powers.

In the field of civil protection,

Cross-border
the EU should promote an
cooperation
integrated approach to cover
helps to improve
security at major the different phases of a crisis
sports events — prevention, response and
recovery — through the
© Fotolia implementation of European
mutual assistance and soli-
darity.

VI — Judicial cooperation in criminal matters

Closer cooperation between Member States’ judicial authorities is essential,

as is the need for Eurojust to achieve its full potential within the frame-
work of applicable law. At EU level, successful criminal operations and
investigations must enable us to realise the potential synergies between
law-enforcement and border agencies and judicial authorities in prevent-
ing cross-border crime.

VII — Integrated border management

As well as tackling illegal immigration, integrated border management

plays an important role in maintaining security. The integrated border-
management mechanism must be reinforced in order, inter alia, to spread
best practice among border guards. The feasibility of the creation of a
European system of border guards must be explored on the basis of a prior
analysis. Special emphasis will have to be given to the continued develop-
ment of the European border surveillance system (Eurosur).
 27

Medical staff
and the Italian
coastguard
on the Isle
of Lampedusa

© European Union,
2010

The cooperation and coordination of Frontex with other EU agencies and

Member States’ law-enforcement agencies is a key issue for the success of
this agency.

New technologies play a key role in border management. They may make
it easier for citizens to cross quickly at external border posts through
automated systems, advance registration, frequent-traveller schemes, etc.
They improve security by allowing for the necessary controls to be put in
place so that borders are not crossed by people or goods which pose a risk
to the Union. In that context, close cooperation between law-enforcement
and border-control authorities is essential. Likewise, the law-enforcement
authorities should facilitate provision of the
information necessary for the implementa-
tion of security measures at borders.

A Frontex staff member checks a vehicle at an EU external

border crossing point
© European Union, 2010
28

The entry into force of the Visa Code, further development of the Schengen
information system as well as electronic border-control systems, such as
an exit–entry system, will contribute to intelligence-led integrated border
management. Dialogue and cooperation with third countries of origin and
transit are also essential, for example to build up border-control capacity.

VIII — A commitment to innovation and training

It is necessary to work together to promote and develop new technologies

through a common approach as well as cutting costs and increasing effi-
ciency. In the field of technology, it is also important for the public and
private sectors to work together. Building upon the outcome of research
and development projects conducted under the joint research and devel-
opment programme, the EU should develop technological standards and
platforms tailored to its security needs.

The interoperability of different technology systems used by any agency

or service must be a strategic objective so that equipment does not pose a
barrier to cooperation between Member States on the sharing of informa-
tion or the carrying out of joint operations.

A strategic approach to professional training in Europe: this objective is

essential in establishing law-enforcement, judicial and border-management
authorities that have advanced technology and are at the forefront of their
specialisation, and in enabling European law-enforcement training to take
a major step forward and become a powerful vehicle for promoting a shared
culture amongst European law-enforcement bodies and facilitating trans-
national cooperation. For that to be achieved, European elements should
be included in national training, and exchange programmes should be
developed on the basis of the Erasmus model. To that end, highly trained
European professionals sharing a similar culture will add value in the
context of competition in a globalised society, as well as in the field of
security. The European agencies and bodies, especially CEPOL, should
play an important role.
 29

IX — External dimension of internal security/cooperation

with third countries

A concept of internal security cannot exist without an external dimension,

since internal security increasingly depends to a large extent on external
security. International cooperation by the EU and its Member States, both
bilaterally and multilaterally, is essential in order to guarantee security
and protect the rights of our citizens and to promote security and respect
for rights abroad. The EU’s policies with regard to third countries need to
consider security as a key factor and develop mechanisms for coordination
between security and other related policies, such as foreign policy, where
security issues must increasingly be taken into account in an integrated
and proactive approach.

In terms of external security, the EU must not restrict itself just to coopera-
tion between the law-enforcement agencies of Member States and other
countries, especially EU neighbours. It is necessary to build relation-
ships with other countries through a global
approach to security, working closely with them
and, when necessary, supporting their insti- European countries
tutional, economic and social development. have established
This system of working will mean establishing successful platforms in
opportunities for dialogue through areas of the Caribbean, Lisbon,
mutual interest, concerns and the possibili- Toulon, Accra and Dakar
ties for cooperation that can be identified in in cooperation with third
each case. Cooperation and coordination with countries in the fight
international organisations in the field of law against drug trafficking.
enforcement, in particular with Interpol, should
be enhanced. Bilateral, multilateral and regional
approaches among Member States should be developed, where appropriate,
to address specific threats.

The efforts to combat transnational crime outside the EU as well and to

build up respect for the rule of law are of crucial importance. Cooperation
with the common European security and defence policy, especially between
the EU agencies and the respective missions, must therefore be enhanced
even further. It is also very important to strengthen the participation of
law-enforcement agencies and justice, freedom and security bodies at all
30

stages of civilian crisis-management missions, so that they can play a part

in resolving conflicts by working together with all other services involved
on the ground (military, diplomatic, emergency services, etc.). Special
attention will have to be paid to ‘weak and failed states’ so that they do
not become hubs of organised crime or terrorism.

In this context, the internal security strategy serves as an indispensable

complement to the EU security strategy, developed in 2003 under the
EU’s security and defence policy to address global risks and threats and
to make a commitment to the social, political and economic develop-
ment of global society as the most effective way of achieving effective and
long-lasting security.

X — Flexibility to adapt to future challenges

A broad, pragmatic, flexible and realistic approach is required, continu-

ally adapting to reality, taking into account risks and threats which could
impact citizens in a wider perspective, not focusing only on criminal aspects
but taking into account risks of any kind which might create a security
problem in the broader sense, as well as being attentive to the detection
of any need to adapt to these changing circumstances and guaranteeing
the highest levels of security for the people of Europe.
 31
3. NEXT STEPS

Following the action plan for the implementation of the Stockholm pro-
gramme, the Commission will adopt a communication on the internal
security strategy, which will include action-oriented proposals. Further
developing, monitoring and implementing the internal security strategy
must become one of the priority tasks of the Standing Committee on
Operational Cooperation on Internal Security (COSI). Furthermore,
according to the Stockholm programme, the Commission will consider
the feasibility of setting up an internal security fund to promote the
implementation of the internal security strategy.

© European Union, 2010

General Secretariat of the Council

Internal security strategy for the European Union — Towards a

European security model

Luxembourg: Publications Office of the European Union

2010 — 31 pp. — 14.8 × 21 cm

ISBN 978-92-824-2679-1
doi:10.2860/87810
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ISBN 978-92-824-2679-1